US. Department of Jus. < Office of Legal Counsel Office of the Deputy Assistant Attomey General Washington, D.C. 20530 November 15, 2001 MEMORANDUM FOR JOHN BELLINGER, IL SENIOR ASSOCIATE COUNSEL TO THE PRESIDENT AND LEGAL ADVISER TO THE NATIONAL SECURITY COUNCIL FROM: John C. Yoo Deputy Assist Ati Robert J. Delahunty oe a Special Counsel : Authority of the President to Suspend Certait ion aM Treat This is to provide you with our views on the question whether the President has the constitutional authority to suspend certain articles of the Treaty Between the United States of America and the Union of Soviet Socialist Republics on the Limitation of Anti-Ballistic Missile Systems, May 26, 1972, US-U.SSR., 23 US.T. 3435 (the “ABM Treaty”) insofar as is necessary to allow the development and testing of missile defenses. You have asked us to consider two cases: first, suspension of the relevant articles by mutual consent of both the United States and the Russian Federstion; second, unilateral suspension by the United States. We conclude that the President has the constitutional authority to suspend the articles in either case. We begin by setting out in Part I the relevant features of the ABM Treaty. In Part II, we review the President's constitutional authorities over treaties. In Part I, we address the President's specific powers of treaty termination and treaty suspension. Part IV illustrates these powers by reference to the practiée of the United States. Part IV(A) addresses termination, and Part IV(B) suspension Part V demonstrates that, whereas “amending” an Article I] treaty requires Senate advice and consent, the partial suspension of a treaty docs not. I The ABM Treaty The ABM Treaty, which entered into force on October 3, 1972, originated as\a bilateral treaty between the United States and the former Soviet Union. In general, the ABM Treaty set limits on the number and location of anti-bellistic missile systems of the former Soviet Union and the United States and prevented the deployment of defenses against long-range strategic ballistic missiles. Each side was originally permitted to have two deployment areas (later, byprotocol, reduced to one'), so restricted and located that the areas could not provide a nationwide ABM defense, or become the basis for one. Of the two deployment arcas originally permitted to ‘each side, one was for a limited ABM system to protect that Nation’s capital, and one was to protect an intercontinental ballistic missile system launch area. Quantitative and qualitative limits were set on the ABM systems that could be deployed, and the Parties further agreed to limit qualitative improvements of their ABM technology. In Article V, both Parties agreed to prohibit the development, testing, or deployment of sea- ‘based, air-based, space-based or mobile land-based ABM systems and their components, Certain provisions of the ABM Treaty concerned the breach, amendment,or abrogation of the Treaty. Article X provided that “[eJach Party undertakes not fo assume any international obligations which would conflict with this Treaty” Article XTV(1) authorizes each Party to propose amendments to the Treaty, which if agreed upon “shall enter into force in accordance with the procedures governing the entry into force of this Treaty.” Article XV(1) provides that the Treaty “shall be of unlimited duration.” Article XV(2) grants each Party “the right to withdraw from this Treaty if it decides that extraordinary events related to the subject matter of this Treaty have jeopardized its supreme interests.” ‘The dissolution of the former Soviet Union during the autumn and winter of 1991 required the United States to re-evaluate its bilateral treaties with the Soviet Union, including the ABM ‘Treaty. On the whole, the United States operated on the general principle that the treaty rights and obligetions of the former Soviet Union had passed to “successor” States, unless the terms or the object and purpose of a treaty required a different result. See Memorandum for John M. Quinn, Counsel to the President, from Walter Dellinger, Assistant Attomey General, Office of Legal Counsel, Re: Section 233(a) of S. 1745, at 1-2 (June 26, 1996) (“1996 Dellinger Memo"); see also Edwin D. Williamson and John E. Osborn, 4 U.S. Perspective on Treaty Succession and Related Issues in the Wake of the Breakup of the USSR and Yugoslavia, 33 Va. J. Int’1 L. 261, 264-65 (1993). Nevertheless, in the area of arms control treaties it was decided to treat succession issues on a case-by-case basis. On September 26, 1997, the United States entered into a Memorandum of Understanding Relating to the Treaty Between the United States of America and the Union of Soviet Socialist ‘Republics on the Anti-Ballistic Missile Systems of May 26, 1972, September 26, 1997, available at httpuAwww State,gov/www/alobal/arms/factsheets/missdef/abm mouhtm] (the “MOU”). Four “successor” States were parties with the United States to the MOU: Belarus, Kazakhstan, the Russian Federation and Ukraine.” The MOU was intended to reflect the fundamental changes in the political situation caused by the dissolution of the Soviet Union and to preserve the viability of the ABM Treaty. Article I of the MOU provided that, “upon entry into force of this Memorandum,” the United States together with the four other signatory States “shall constitute the Parties to the [ABM] Treaty.” The four successor States assumed the rights and obligations of the former Soviet Union, subject to certain modifications. Only a single ABM * See Protocol to the Treaty between the United States of America and the Union of Soviet Socialist Republics on {he Limitation of the Ani-Bellstic Missile Systems, uly 3, 1976, Art 1, 27 UST. 1625, 1686, TLAS. 8276. * Each of these four States possessed ABM Treaty-related assets on its teritory, and each had demonsiated a desire to become a Party to the ABM Treaty.deployment area was permitted for all of the four successor States combined, and only 15 ABM launchers collectively at ABM test ranges were permitted. Article IX(1) provided that “[tJhis Memorandum shall be subject to ratification or approval by the signatory States, in accordance with the constitutional procedures of those States.” Id, During the last Administration, our Office took the position that the United States could enter info MOU without Senate advice and consent as a velid exercise of the President's constitutional authorities to recognize States and to implement and interpret treaties. See 1996 Dellinger Memo. While not conceding the constitutional point, President Clinton promised that “[tJhe MOU .... will be provided to the Senate for its advice and consent.” Letter to Hon. Benjamin A. Gilman, Chairman, Comm. on Intemational Relations, United States House of Representatives, from President William Jefferson Clinton (Nov. 21, 1997), reprinted in 144 Cong. Rec. H7276 (1998). The Clinton Administration did not submit the MOU to the Senate, and it remains unsubmitted. We are informed that the United States has not deposited its instrument of ratification of the MOU. We are also informed that all four successor States have ratified the MOU. The Russian Federation's ratification was conditional, however, on the United States’ ratification of the START protocols. We understand that this condition has not been met, and that it appears unlikely that it will be met. Consequently, both because the United States has not deposited its instrument of ratification, and because the Russian Federation’s ratification was contingent on an as-yet unmet condition, the MOU by its own terms has not yet entered into force. Ul. The President's Constitutional Authority Over Treaties Presidential authority over treaties stems from the President's leading textual and structural position in foreign affairs generally, from the text and structure of Article II’s vesting of all of the federal executive power in the President, and from the specific manner in which the Constitution allocates the treaty power. Construing the Constitution in this manner comports with the President's Article II responsibilitics to conduct the forcign affairs of the nation, to act, as its sole representative in intemational relations, and to exercise the powers of Chief Executive. Historical practice also plays an important role in resolving separation of powers questions relating to foreign affairs. Judicial decisions in the area are rare, while the need for discretion and speed of action favor deference to the arrangements of the political branches. The historical evidence supports the claim that the President has broad constitutional powers with respect to treatics, including the powers to terminate and suspend them. In light of considerations of all ‘three kinds -- textual, structural and historical -- we conclude that the President has the constitutional authority to suspend a provision of the ABM Treaty. > Whether the ABM Treaty remains in effect and, i's, who are the Parties to it are questions thet continue to be disputed. The dissolution of the Soviet Union in December, 1991, arguably altered the fundamental conditions on ‘which the ABM Treaty was predicated, and it may be argued with considerable force tht the teaty did not survive that change. Ifthe ABM Treaty were thought not to have survive, then the MOU would be without effec, because the MOU was designed to extend and multiateralize the treaty. Even on the view that the ABM Treaty did survive, the fact that the MOU has not entered into force appears to indicate thatthe treaty is at this point a bilateral treaty ‘between the United States andthe Russian Federation, rather than a multilateral treaty involving the four successor States and the United States.